The  Reorganization  of  a  Department  of  the  Government 
By  HON.  GEORGE  von.  L.  MEYER 

Secretary  of  the  Navy 

ORGANIZATION  OF  THE  NAVY  DEPARTMENT 

The  present  organization  in  Washington,  which  was  put  into  force 
in  the  Navy  Department  in  December,  1909,  had  for  its  main  object 
the  establishment  of  a  system  which  would  enable  the  Secretary  to 
administer  his  office  efficiently  and  economically,  with  the  advice  of 
responsible  expert  advisers,  insuring  continuity  of  policy  for  the 
future.  For  this  reason  the  Department  was  divided  into  four  logical 
divisions,  and  for  the  head  of  each  division  an  officer  was  selected 
who  was  specially  qualified  for  the  duties  assigned  to  him.  These 
divisions,  as  stated,  were  four  in  number,  and  may  be  summarized  in 
this  way :  The  Division  of  Material  furnishes  the  completed  ship  and 
supplies  her  with  stores,  ready  for  the  personnel.  The  Division  of 
Personnel  then  furnishes  the  officers  and  men  necessary  to  man  the 
ship.  The  Division  of  Operations  uses  the  product  thus  furnished  to 
perform  the  duties  assigned  to  the  fleet.  The  Division  of  Inspections 
examines  the  results  attained  in  the  various  fields  of  naval  activity 
and  reports  directly  to  the  Secretary. 

With  the  assistance  of  the  Aids  of  these  divisions,  acting  as  the  eyes 
and  ears  of  the  Secretary,  the  work  accomplished  has  resulted  in 
economy  and  efficiency.  Economy  is  shown  by  the  fact  that  the 
effective  material  strength  of  the  navy  has  been  increased  without 
exceeding  the  current  appropriations.  Efficiency  is  shown  by  the 
facility  with  which  the  business  of  the  Department  has  been  trans¬ 
acted. 

The  navy  yard  is  a  military  establishment  existing  solely  for  mili¬ 
tary  purposes.  A  part  of  the  work — the  largest  part,  if  magnitude 
be  gauged  by  the  amount  of  money  expended — is  industrial  in  its 
character,  but  not  in  its  object. 

But  yards  cannot  be  scientifically  managed  to  the  greatest  advan- 

Rcad  at  the  first  meeting  of  the  Efficiency  Society,  held  in  New  York  City,  March  18 
and  19,  1912. 

8—1 


tage  so  long  as  the  Secretary  is  hampered  by  lack  of  power  to  use 
the  moneys  appropriated  to  the  best  advantage.  The  yards  must  be 
organized  and  managed  so  as  to  promote  military  efficiency,  and  it  is 
necessary  that  the  yards  produce  results  which  will  increase  the  mili¬ 
tary  value  of  the  fleet,  for  the  fleet  is  the  Navy. 

The  problem  which  will  have  to  be  met  when  the  canal  is  com¬ 
pleted  and  the  fleet  is  spending  six  months  of  the  year  on  the  Pacific 
Ocean  is  the  question  of  the  consolidation  of  the  navy  yards.  We 
are  at  present  embarrassed  by  a  superfluous  number  of  navy  yards, 
distributed  along  the  Atlantic  coast  from  Maine  to  Louisiana.  This 
calls  for  a  vast  amount  of  money  to  be  expended  for  maintenance, 
absolutely  unnecessary  to  meet  the  actual  requirements  of  the  fleet. 
But  nothing  can  be  accomplished  in  the  abolition  of  needless  navy 
yards  until  public  sentiment  is  aroused  to  the  necessity  of  it,  and 
until  it  becomes  so  evident  that  local  interests  will  be  overcome  by 
public  interest  in  meeting  this  question  on  broad,  patriotic,  business 
principles. 

Business  principles  have  been  applied  to  the  navy,  both  ashore  and 
afloat,  in  so  far  as  possible.  Radical  changes  have  been  made  where 
the  efficiency  of  the  yards  and  ships  would  allow,  and  a  progressive 
policy  of  improvement  has  been  consistently  followed  throughout  this 
administration. 


stores 

Consolidation  of  stores,  simplification  of  accounts,  separation  of 
the  accounting  from  the  shops  and  its  consolidation  under  one  officer, 
increased  accuracy  in  the  reports  of  the  cost  of  work,  all  these  have 
had  a  part  in  the  production  of  a  more  economical  and  a  more  efficient 
administration  in  the  navy  yards. 

The  same  principles  have  been  carried  to  the  ships  at  sea  where 
all  stores  are  under  the  care  of  one  officer,  the  general  storekeeper 
of  the  ship.  The  different  departments  have  been  given  a  money  allot¬ 
ment  for  stores,  the  amount  of  which  is  less  than  the  value  of  the 
old  allowance  of  stores  in  kind. 

This  consolidation  of  all  supplies  and  the  consequent  economy  in 
storeroom  space,  maintaining  one  stock  of  supplies  under  the  custody 
of  one  officer,  in  lieu  of  five  stocks  under  as  many  officers ;  the  charg¬ 
ing  to  the  appropriation  concerned,  with  only  such  quantities  of  sup¬ 
plies  as  are  actually  used  for  the  maintenance  of  each  department, 
and  at  the  time  such  supplies  are  drawn  for  use;  the  separation  of 
the  stock  of  supplies  and  the  accounting  for  same,  from  those  actually 

8—2 


being  consumed;  the  consolidation  and  simplification  of  accounts,  and 
the  relieving  of  line  officers  of  a  great  volume  of  clerical  work  which 
properly  formed  no  part  of  their  technical  line  duties;  all  these  are 
changes  which  have  been  wrought  for  economy  and  efficiency  on  ship¬ 
board,  and  which  indicate  our  policy  toward  a  progressive  administra¬ 
tion,  the  ultimate  aim  of  which  is  a  high  standard  of  production  for 
an  economical  outlay  of  capital. 


GUNNERY 

The  principles  of  scientific  management  have  been  known  and 
practiced  in  the  fleet  for  years.  Recently  it  has  been  the  cause  of  the 
wonderful  increase  in  the  gunnery  efficiency  of  the  navy. 

In  the  battle  practices  of  recent  years  the  competitive  system  has 
given  remarkable  results.  Officers  drill  and  train  their  crews;  every 
man  is  carefully  selected  according  to  his  physical  and  mental  quali¬ 
fications  to  do  the  duties  at  the  gun ;  some  are  selected  as  gun  pointers, 
some  as  sight  setters,  and  others  as  loaders  and  plug-men.  Each  indi¬ 
vidual  is  tried  repeatedly  to  see  if  he  is  best  suited  to  the  job  at 
hand.  The  result  is  that  every  man  at  a  gun  station  is  the  man  best 
suited  in  every  way,  physically  and  temperamentally,  for  his  par¬ 
ticular  duty. 

The  study  of  the  time  element  of  certain  operations  has  been  go¬ 
ing  on  for  years,  and  a  marked  decrease  in  the  amount  of  time  neces¬ 
sary  to  perform  these  operations  has  resulted. 

The  first  step  was  to  make  more  rapid  the  work  of  each  individual, 
making  his  movements  as  simple  and  easy  as  possible,  and  making 
them  harmonious,  so  that  there  would  be  no  interference.  In  order 
to  obtain  these  ends,  each  individual  was  first  made  to  go  through  his 
work  slowly,  so  that  accuracy  and  perfection  of  each  operation  were 
obtained  and  unnecessary  movements  eliminated.  This  plan  not  only 
insured  perfection  of  detail,  but  unconsciously  to  himself  each  man 
was  training  his  muscles  so  that  they  would  quickly  respond  to  his 
call  and  so  that  he  would  suffer  the  minimum  of  fatigue.  As  perfec¬ 
tion  of  detail  increased,  speed  was  sought  for,  and  each  man’s  work 
was  carefully  timed  by  stop  watch. 

Having  trained  the  muscles  and  developed  the  skill  of  the  indi¬ 
vidual,  it  became  necessary  to  coordinate  the  work  of  the  organization 
as  a  whole.  Exactly  the  same  methods  were  employed  as  for  the 
training  of  the  individuals ;  i.  e.,  each  part  of  the  organization  slowly 
8-3 


and  precisely  did  the  part  of  the  work  assigned  it,  and  precision  and 
ease  of  operation  were  attained. 

Every  detail  was  timed  by  stop  watch ;  for  instance,  it  required 
two  and  one-fifth  seconds  to  open  the  breech  of  a  12-inch  gun;  one- 
fifth  of  a  second  to  put  in  primer;  three  and  two-fifths  seconds  to 
ram  the  projectile;  four  and  one-fifth  seconds  to  ram  the  powder; 
three-fifths  of  a  second  to  withdraw  the  loading  tray,  etc. 

It  is  recognized  that  no  man  can  work  continuously  during  a  long 
period,  especially  when  under  great  mental  stress,  but  that  each  man 
must  have  certain  periods  of  rest  in  order  to  allow  nature  to  build 
up  what  has  been  torn  down.  In  order  to  reduce  the  mental  stress 
to  a  minimum,  drills  are  held  frequently,  so  that  although  each  man 
must  at  all  times  be  alert,  the  method  of  the  performance  of  the 
work  becomes  an  ingrained  habit,  to  a  certain  degree  a  second  nature 
with  the  man,  and  no  conscious  effort  of  the  mind  is  required  to  per¬ 
form  each  operation.  The  functions  of  the  different  members  of  a 
turret  crew  are  laid  out  so  that  even  with  the  greatest  possible  rapidity 
of  fire  each  man  must  rest  during  a  given  part  of  the  operation  of 
loading  and  firing  a  gun.  For  example,  the  trainer  and  pointer  may 
rest  their  eyes  while  the  gun  is  being  loaded,  the  plugman  has  no 
duty  to  perform  while  the  pointer  and  trainer  are  getting  on  the  target 
before  firing,  and  while  the  projectile  and  powder  are  being  loaded 
into  the  gun,  etc. 

Having  attained  a  high  standard  of  speed  in  accurate  firing  of  one 
gun  the  drills  are  extended  to  the  whole  broadside  of  ten  or  twelve 
turret  guns. 

The  object  sought  is  well  indicated  by  the  opening  statement  in 
the  “Rules  for  Battle  Practice,  1911,”  that  “the  measure  of  the  battle 
efficiency  of  any  vessel  is  her  ability  to  deliver  the  greatest  number  of 
hits  in  the  shortest  possible  time  after  the  enemy  is  sighted,  and  with 
the  least  expenditure  of  ammunition.” 

The  value  of  these  methods  is  obvious.  Not  only  do  they  serve 
to  attain  economically  scientific  performance  of  all  work  done,  but, 
knowing  the  plans  and  details  of  any  new  vessel,  they  serve  as  a  very 
exact  guide  to  the  number  of  men  necessary  to  man  and  fight  her 
efficiently. 

As  a  result  of  practical  management,  the  hitting  power  of  the 
fleet  at  long  ranges  has  improved  remarkably. 

Conditions  have  varied  from  year  to  year,  due  to  weather  experi¬ 
enced  at  different  practices,  changes  in  target  area,  and  changes  in 
methods  used.  Within  the  last  two  or  three  years,  the  target  has 

8 — 4 


been  very  much  reduced  in  area,  but  even  with  this  handicap,  in  the 
spring  battle  practice  of  1911  the  12-inch  guns  doubled  the  scores 
made  at  the  practices  only  six  months  previous. 

With  the  improvement  in  gunnery  has  also  come  a  marked  im¬ 
provement  in  preparedness  for  battle.  The  rules  have  been  so  drawn 
as  to  direct  thought  toward  what  may  be  expected  in  an  engagement. 
Casualties  have  been  simulated  and  unexpected  difficulties  have  been 
thrown  in  the  way  by  the  officers  controlling  the  fire,  so  that  they  may 
be  able  to  meet  all  obstacles. 

The  methods  for  making  the  “approach”  when  about  to  engage 
in  battle  have  been  studied  and  developed  as  a  result  of  the  various 
battle  plans  laid  down  by  the  department  for  the  actual  firing  of  the 
guns. 

None  of  our  vessels  are  now  “smooth-water”  ships.  The  depart¬ 
ment  has  demanded  that  the  training  should  be  conducted  on  the 
open  sea,  where  the  rolling  and  pitching  require  the  most  expert  skill 
on  the  part  of  the  gunpointers  in  order  to  hit  the  target.  Further,  it 
has  been  assumed  that  the  ships  may  have  to  fight  in  the  most  unfa¬ 
vorable  weather,  and,  therefore,  the  rules  for  the  battle  practices  have 
required  the  ships  to  train  for  fighting  in  rain,  snow,  and  foggy 
weather,  and  generally  when  conditions  are  most  unfavorable  and  ad¬ 
verse.  For  these  reasons,  the  officers  and  crews  are  prepared  to  meet 
whatever  may  come  up,  and  the  ability  to  handle  successfully  the  cas¬ 
ualties  that  will  probably  be  met  in  action  is  one  of  the  most  important 
parts  of  the  training. 

In  the  competitive  battle  firing,  the  conditions  are  made  just  as 
severe  as  those  that  would  obtain  in  actual  action.  The  firing  vessel 
has  no  knowledge  of  the  course,  speed,  and  distance  of  the  target 
vessel.  All  the  information  she  has  is  that  somewhere  on  the  horizon, 
at  a  distance  of  10  miles  or  more,  is  a  column  of  smoke  which  marks 
the  target  vessel  at  which  she  is  to  shoot.  She  steams  toward  it  at 
her  best  speed  and  opens  fire  at  whatever  range  she  chooses ;  but  the 
value  of  hitting  at  long  ranges  is  vitally  impressed  on  her  by  the 
amount  that  is  added  to  or  subtracted  from  her  score  for  the  shots 
that  hit  beyond  12,000  yards  or  under  that  mark. 

The  whole  firing  is  over  in  four  minutes  and  the  ship  has  no  other 
chance  to  make  good,  if  she  fails  in  this.  No  excuses  are  accepted 
for  failure  of  guns  to  fire,  for  breakdowns  of  any  character,  or  for 
any  faults  of  the  personnel  or  material. 

As  evidence  of  the  value  of  competition  in  gunnery,  a  comparison 
is  made  with  the  fighting  efficiency  of  the  vessels  during  the  Spanish- 

8-5 


American  war  and  at  the  present  writing.  The  percentage  of  hits  in 
1898  was  3 y2  with  the  large  guns  firing  about  once  in  five  minutes  at 
short  range.  The  percentage  of  hits  in  the  recent  firing  at  the  San 
Marcos  was  33  1-3,  the  range  being  10,000  yards  and  the  present  rate 
of  firing  a  single  12-inch  gun  being  about  ten  shots  in  five  minutes. 
This  rather  overestimates  the  work  at  Santiago  and  underestimates 
the  work  to-day.  A  roughly  drawn  comparison  shows  that  we  are 
about  1,200  times  better  in  gunnery  efficiency  than  we  were  at 
Santiago. 

The  policy  now  for  the  competitive  training  for  battle  is  that  it 
shall  begin  on  the  date  of  commission,  and  no  excuses  are  accepted 
for  being  unprepared  should  the  department  at  any  time  require  the 
ships  to  fire  at  a  day’s  notice. 


ENGINEERING 

All  ships  in  the  fleet  are  now  placed  on  a  competitive  basis  in  engi¬ 
neering.  This  has  resulted  in  such  improved  efficiency  and  economy 
that  the  Atlantic  fleet,  for  instance,  now  burns  less  coal  per  knot  in 
steaming  at  12  knots  than  it  did  at  10  knots’  speed  during  the  much 
discussed  trip  around  the  world.  Ships  now  in  almost  all  cases  con¬ 
tinue  to  exceed  on  full  power  trials  their  trial  trip  speed,  and  with 
greater  economy  in  coal  and  oil. 

These  results  were  produced  by  the  most  energetic  attention  to 
duty,  in  which  losses  and  wastes  were  eradicated  in  boilers,  engines, 
and  auxiliaries,  as  indeed  they  must  be  if  a  ship  is  to  take  a  creditable 
stand  in  the  engineering  competition.  A  constant  stream  of  detailed 
information  on  design  and  operation  exists  between  ships  and  the 
department  and  between  department  and  ships,  so  that  officers  may 
readily  benefit  by  the  experience  of  others;  that  good  organization 
and  sound  practices  may  become  standardized,  and  that  methods  of 
doubtful  expediency  may  be  brought  under  widespread  discussion. 

That  such  interest  in  engineering  matters  would  result  in  a  gen¬ 
eral  desire  on  the  part  of  officers  for  more  complete  engineering  edu¬ 
cation  was  easily  foreseen.  The  establishment  of  the  School  of  Marine 
Engineering  at  Annapolis,  as  a  post-graduate  course,  in  collaboration 
with  the  Engineering  Experiment  Station  at  that  place,  opened  up 
this  avenue,  and  met  with  instant  recognition  from  the  service.  This 
school,  only  three  years  old,  has  already  proved  its  value,  and  its 
bearing  on  engineering  efficiency  is  assured.  Aside  from  its  educa- 

8—6 


tional  value,  the  Engineering  Experiment  Station,  also  at  Annapolis, 
has  resulted  in  large  economies. 

Nor  is  the  practical  engineering  education  of  the  enlisted  force 
forgotten,  there  being  schools  for  machinists  and  coppersmiths  at 
Charleston,  S.  C.,  and  at  San  Francisco,  an  oil-fuel  burning  test  plant 
and  school  at  Philadelphia,  and  an  electrical  and  a  radio-telegraph 
school  at  New  York. 

Repair  initiative,  resulting  in  a  vessel’s  self-sustaining  qualification, 
has  received  great  impetus  during  the  last  few  years.  Ships  will  never 
be  entirely  self-sustaining,  this  being  limited  both  by  necessary  lack 
of  large  repair  facilities  and  by  the  short  periods  of  time  possible  to 
allow  for  repairs  and  alterations.  Large  savings  in  time  and  money  in 
repair  work  are  now  the  order  of  the  day,  and  ships  undertake  their 
own  repairs  as  a  matter  of  pride  and  as  a  matter  of  course.  The 
well-known  resourcefulness  of  the  American  mechanic  is  a  large  ele¬ 
ment  in  this. 

The  United  States  Navy  has  every  reason  to  be  encouraged  by  its 
engineering  prospects,  and  to  feel  assured  that  it  is  on  the  right  track 
to  efficiency.  The  duties  and  responsibilities  of  line  and  engineer  offi¬ 
cers,  brought  about  by  the  amalgamation  enactment  in  1899,  which 
caused  such  wide  comment  and  doubt  in  the  naval  world,  at  home 
and  abroad,  are  accepted  in  our  navy  with  enthusiasm.  Already  its 
results  are  said  to  be  25  per  cent,  better,  measured  in  fuel  economy, 
than  those  of  one  of  the  large  navies ;  and  in  our  own  Navy  conditions 
have  greatly  improved,  and,  furthermore,  are  constantly  improving. 
That  we  are  not  distinctly  in  first  place  in  advancement  is  probably 
traceable  at  present  to  our  present  national  tendency  to  be  behind  in 
experimental  and  research  work,  in  which  the  Germans  notably  lead; 
but  that  this  feature  is  receiving  attention  by  the  whole  country  is 
well  known,  and  great  improvements  along  this  line  may  be  confi¬ 
dently  expected. 

MODERN  MANAGEMENT  AND  EFFICIENCY 

So-called  scientific  management  is  an  evolution  and  not  an  inven¬ 
tion.  The  pressure  of  competition  and  the  growth  of  large  corpora¬ 
tions  has  forced  a  scientific  examination  of  all  business  methods,  and 
naturally  we  have  certain  acknowledged  experts  in  modern  manage¬ 
ment  who  are  fully  acquainted  with  the  theory,  and  some  of  the  prac¬ 
tice,  of  methods  necessary  to  produce  both  economy  and  efficiency  in 
many  branches  of  modern  business. 

There  are  two  portions  of  the  theory  that  are  essentially  new: 

8-7 


the  formation  of  a  thinking  or  planning  branch  in  the  administrative 
body,  one  that  advises  and  does  not  execute;  and  second,  the  direct 
instruction  of  the  workman  through  each  motion  that  makes  up  his 
daily  work. 

The  formation  of  a  staff  that  advises  but  does  not  execute  was 
first  worked  out  in  the  armies  of  the  world,  and  the  German  general 
staff  is  an  example  of  it  in  the  highest  state  of  efficiency.  The  fail¬ 
ures  of  this  principle  can  generally  be  traced  to  attempts  to  combine 
staff  and  executive  functions. 

I  have  endeavored  to  create  such  a  branch  in  the  navy  department 
at  Washington  by  taking  four  experienced  officers  as  aids  to  advise 
me  in  questions  of  administration  of  the  fleet,  of  the  personnel,  of 
the  material,  and  of  inspection,  the  four  natural  divisions  of  the  mili¬ 
tary  work  of  the  department. 

The  aids  plan  and  advise  me,  and  the  approved  plans  are  executed 
by  the  commanders  of  the  fleet  and  the  chiefs  of  the  several  bureaus. 

The  second  portion  of  modern  scientific  management  is  the  in¬ 
struction  of  the  men  so  as  to  save  unnecessary  work  and  promote  effi¬ 
ciency  after  a  careful  consideration  of  the  operations  performed  by 
the  mechanic  rather  than  leaving  each  mechanic  to  use  his  special 
tools  as  developed  by  his  own  skill  from  inherited  knowledge.  This, 
with  the  bonus  system  for  good  work,  I  found  had  already  been 
adopted  in  the  fleet.  The  planning  board  was  represented  by  the 
director  of  target  practice  and  engineering  competitions,  and  the  men 
were  carefully  selected  in  accordance  with  the  requirements  of  their 
work,  and  all  unnecessary  motions  were  eliminated.  The  work  in 
turrets  and  in  engine  and  fire  rooms  was  scientifically  studied,  and 
increased  efficiency  resulted. 

A  board  of  scientific  management  experts,  on  visiting  the  fleet, 
stated  that  the  battleships  were  the  finest  examples  of  scientific  effi¬ 
ciency  that  they  had  ever  seen. 

The  adoption  of  like  plans  in  the  navy  yards  presents  many  diffi¬ 
culties.  The  nature  of  the  work  there  is  largely  repair  work  and  the 
time  of  completion  may  be  at  times  more  important  than  the  cost  of 
the  work.  I  have  given  and  am  giving  the  problem  much  considera¬ 
tion,  and  the  yards  will  eventually  be  brought  to  as  high  a  state  of 
efficiency  as  is  consistent  with  military  necessities. 

To  further  this,  I  visited  England,  primarily  for  the  purpose  of 
examining  into  the  systems  of  organization  and  methods  employed  in 
the  English  dockyards  and  in  the  leading  shipbuilding  establishments 
of  Great  Britain. 

8-8 


I  found  at  the  works  of  Messrs.  Vickers,  Limited,  at  Barrow-in- 
Furness,  a  most  efficient  and  simple  system  of  management,  contain¬ 
ing  a  hull  division  and  a  machinery  division. 

The  greatest  percentage  of  increased  efficiency  seemed  to  have 
been  attained  by  broad  effects  in  systematization  and  in  securing  the 
cheerful  cooperation  of  workmen  toward  best  results,  through  proper 
recognition  of  their  initiative  and  more  efficient  effort.  In  order  to 
obtain  still  greater  coordination,  I  have  appointed  a  director  of  navy 
yards  to  advise  me  on  all  such  questions. 

The  present  practice  of  giving  seagoing  officers  experience  at  navy 
yards  and  in  shops  aids  materially  in  keeping  the  vessels  of  the  fleet 
ready  for  action,  for  this  experience  enables  them  to  make  repairs  to 
machinery,  etc.,  with  the  ship’s  force,  and  thus  keep  ships  away  from 
the  yards,  except  for  the  larger  repairs.  This  principle  of  giving  offi¬ 
cers  shop  experience  in  navy  yards  on  the  machinery  they  care  for 
and  keep  in  repair  at  sea  is  of  great  importance,  because  in  time  of 
actual  war  ships  must  be  kept  on  the  battle  line  and  kept  in  working 
order  by  their  own  officers  and  men.  No  battleship  can  then  be  spared 
from  the  fleet. 

'‘Economy”  is  a  much-abused  word ;  it  is  often  used  as  a  synonym 
for  “parsimony”;  light  expenditures  are  frequently  called  “economical 
expenditures.”  No  idea  could  be  further  from  the  truth.  True 
economy  is  almost  synonymous  with  efficiency. 

The  closer  competition  of  modern  business  forces  scientific  man¬ 
agement  on  all  who  would  not  be  left  behind  in  the  race.  The  em¬ 
ployers  must  submit  to  greater  overhead  charges  for  the  sake  of  in¬ 
creased  economy  in  other  directions,  and  they  must  deal  fairly  with 
their  men  in  the  matter  of  a  bonus  for  extra  work  accomplished;  and 
the  employees  must  agree  to  give  up  their  claim  that  all  of  a  like  rate 
in  the  same  trade  must  receive  equal  compensation. 

In  conclusion,  I  desire  to  quote  from  a  preliminary  report  of  the 
Committee  on  Labor  of  the  House  of  Representatives,  made  June  24, 
1911,  which  says,  in  part: 

“If  energy  is  wasted  in  any  form  in  our  industries  or  in  any  of  the 
departments  of  the  Government,  the  elimination  of  the  conditions 
producing  the  waste  would  be  beneficial  alike  to  employer  and  em¬ 
ployee,  to  the  Government  and  to  the  people.  Their  elimination  would 
have  the  same  effect  as  the  introduction  of  a  labor-saving  device. 
No  protest  has  been  received  from  any  source  against  the  elimination 
of  wasted  energy.” 

8 — 9 


